MANAGEMENT PLAN. for Race Rocks Ecological Reserve. Vancouver Island Region

Transcription

1 Vancouver Island Region MANAGEMENT PLAN for Race Rocks Ecological Reserve Ministry of Water, Land and Air Protection Environmental Stewardship Division

2 Race Rocks Ecological Reserve M ANAGEMENT PLAN Prepared by Environmental Stewardship Division Ministry of Water, Land and Air Protection

3 National Library of Canada Cataloguing in Publication Data British Columbia. Environmental Stewardship Division Race Rocks Ecological Reserve management plan Cover title: Vancouver Island Region management plan for Race Rocks Ecological Reserve. ISBN Ecological reserves - British Columbia - Management. 2. Provincial parks and reserves - British Columbia - Management. 3. Marine parks and reserves - British Columbia - Management. 4. Ecosystem management - British Columbia Race Rocks Ecological Reserve. I. Title. II. Title: Vancouver Island Region management plan for Race Rocks. FC3815.C45B C

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5 Acknowledgements Garry Fletcher of Lester B. Pearson College developed an initial management plan based on his extensive knowledge and experience in the area. Kris Kennett, Planning Officer, then updated this draft plan to Environmental Stewardship Division s standards. During the lengthy management planning process and subsequent final preparation of this plan, staff assistance and expertise were provided by: Jim Morris, Planning Officer; Chris Kissinger, Recreation Officer; Marty Roberts, Program Analyst; Don McLaren, Area Supervisor; Mona Holley, Protected Area Conservation Officer; Doug Biffard, Protected Area Ecologist (Aquatic); Ken Morrison, Senior Protected Area Planner; and Dave Chater, former South Vancouver Island District Manager. This management plan is also based on the input derived from Fisheries and Oceans Canada s Marine Protected Area (MPA) pilot initiative and the efforts of Marc Pakenham, Kelly Francis and Dick Carson of Fisheries and Oceans Canada. As well, the contributions of the Race Rocks MPA pilot s public advisory group (see Appendix 5 for membership) are gratefully acknowledged.

6 Table of Contents PLAN HIGHLIGHTS... 1 INTRODUCTION... 3 PURPOSE OF THE MANAGEMENT PLAN...3 THE MANAGEMENT PLANNING PROCESS...3 BACKGROUND INFORMATION...4 RELATIONSHIP WITH OTHER LAND USE PLANNING...4 KEY MANAGEMENT ISSUES... 7 ECOLOGICAL RESERVE BOUNDARY...7 COOPERATION WITH THE FEDERAL GOVERNMENT...7 COOPERATION WITH LESTER B. PEARSON COLLEGE...7 MANAGEMENT OF EDUCATION ACTIVITIES...7 MANAGEMENT OF RECREATION AND COMMERCIAL ACTIVITIES...8 FIRST NATIONS ISSUES...8 MARINE POLLUTION...8 THE ROLE OF THE ECOLOGICAL RESERVE... 9 SIGNIFICANCE IN THE PROTECTED AREAS SYSTEM...9 CONSERVATION ROLE...9 EDUCATION ROLE...10 RESEARCH ROLE...10 RECREATION - PUBLIC ACCESS ROLE...10 VISION STATEMENT...10 MANAGEMENT OBJECTIVES AND STRATEGIES RELATIONSHIP WITH FIRST NATIONS...11 ECOLOGICAL RESERVE BOUNDARY...11 LEGAL STATUS...12 FISH MANAGEMENT...13 WILDLIFE MANAGEMENT...14 CULTURAL HERITAGE...15 MARINE POLLUTION RISK MANAGEMENT...15 FACILITY MANAGEMENT...16 ACCESS MANAGEMENT AND SITE VISITATION...17 BOAT ACCESS...18 AIRCRAFT ACCESS...19 DIVING ACCESS...19 TERRESTRIAL AREA ACCESS...19 COMMERCIAL USE ACCESS...20 GENERAL ACCESS STRATEGIES...20 ADJACENT LAND USES...21 RESEARCH MANAGEMENT...21 EDUCATION OPPORTUNITIES...23 COMMUNICATION STRATEGY...24 ROLES, RESPONSIBILITIES AND RELATIONSHIPS PROVINCIAL AGENCIES...25 FEDERAL AGENCIES...25 i

7 FIRST NATIONS...25 COMMUNITY STEWARDSHIP...26 PLAN IMPLEMENTATION ONGOING MANAGEMENT...27 PRIORITY ONE STRATEGIES...29 PRIORITY TWO STRATEGIES...31 APPENDIX PURPOSE, ROLE AND BENEFITS OF ECOLOGICAL RESERVES...33 APPENDIX RACE ROCKS ECOLOGICAL RESERVE BACKGROUND REPORT...34 INTRODUCTION...34 ECOLOGICAL RESERVE DESCRIPTION...34 HISTORY OF ECOLOGICAL RESERVE ESTABLISHMENT...34 NATURAL FEATURES...35 TENURES, OCCUPANCY RIGHTS AND JURISDICTIONS...39 RESOURCE USE ADJACENT TO ECOLOGICAL RESERVE...39 RESEARCH...40 EDUCATION...41 OTHER ACTIVITIES...41 MANAGEMENT CONSIDERATIONS...42 APPENDIX VOLUNTARY GUIDELINES FOR DIVE VESSELS AND DIVERS...43 APPENDIX RACE ROCKS: BEST PRACTICES FOR TOUR OPERATORS...45 APPENDIX RACE ROCKS PUBLIC ADVISORY BOARD MEMBERSHIP...46 List of Figures Figure 1: Race Rocks Ecological Reserve Context...5 Figure 2: Race Rocks Ecological Reserve Boundary (20 Fathoms / 36.6 metre depth)...6 ii

8 Plan Highlights Established in 1980 as a result of a proposal by Lester B. Pearson College (the College), Race Rocks Ecological Reserve (the Reserve) will continue to be managed to protect a provincially significant high current sub-tidal and inter-tidal ecosystem and to provide outstanding educational/research opportunities. In 1998, the federal Minister of Fisheries and Oceans announced Race Rocks as one of four pilot areas being considered for designation as Marine Protected Areas (MPAs) under the Oceans Act. Designation of the Race Rocks area as a MPA is supported as a way to complement the objectives of the Reserve. Race Rocks Ecological Reserve is not being managed for the purpose of providing recreational opportunities. Use within the Reserve is intended only for education or research purposes. Race Rocks Ecological Reserve will be managed in a way that allows educational and research opportunities, to the extent that impacts from these activities are within acceptable limits. The former lightstation buildings will be operated by the College (under permit) and other partners as the Race Rocks Marine Education and Research Centre. The future of these buildings within the Reserve is dependent on partnerships and financial contributions for their operation and maintenance. The consultation process identified public expectations for a high level of protection for the Reserve. Achieving this expectation requires the complementary application of federal jurisdiction within the waters of the present ecological reserve and the adjacent area. As well, the protection objectives for the Reserve will be enhanced through the co-operation of First Nations, the College, interest groups (e.g. recreation fishers) and commercial organizations (e.g. commercial tour operators association). The Province wants to ensure that it does not unlawfully infringe any aboriginal rights or title that may exist. The Environmental Stewardship Division (ESD) will work cooperatively 1

9 with aboriginal communities to identify and allow for continued use of compatible traditional activities. The Environmental Stewardship Division will pursue the Reserve s protection objectives using cooperative and regulatory arrangements with federal agencies, First Nations, the College, interest groups, commercial associations and the general public, particularly in the following areas: Using federal authority to close all commercial and recreational fisheries and make the waters within the Reserve a no-take area; Developing regulations and guidelines for managing air and marine traffic to ensure the impacts from these activities do not affect the long term well-being of the natural values of the area; Working with the Department of National Defence to ensure their activities respect the Reserve s objectives; and Developing marine pollution prevention and response plans. This plan will form the basis of a governance agreement with Fisheries and Oceans Canada (DFO) and an umbrella management plan. This agreement and plan will ensure a coordinated approach to the management of the area under the complementary marine protected area designations of the federal Oceans Act and the provincial Ecological Reserve Act. 2

10 Introduction Purpose of the Management Plan This plan defines management objectives and strategies for Race Rocks Ecological Reserve. It provides the direction necessary to protect and manage the Reserve, particularly concerning the protection of natural and cultural heritage values, recreation use, research and education uses. The management plan is a working tool that will require periodic updating. Specific strategies are documented for a multi-year management program. An objective of the ecological reserve program in British Columbia is the conservation of representative and special natural ecosystems, plants and animal species, features and phenomena. Ecological reserves contribute to the maintenance of biological diversity and the protection of genetic materials. They also offer opportunities for scientific research and educational activities. In many ecological reserves, non-consumptive, low-intensity uses such as nature appreciation, wildlife viewing, bird watching and photography are allowed. The objectives and strategies identified for the Reserve in this plan have been set in this context. The Management Planning Process The original draft of this plan was prepared by Garry Fletcher of the College, and benefited immeasurably from his knowledge and experiences in the Reserve. That original draft was reformatted to the Environmental Stewardship Division s (ESD) standards, and updated with the input from Division staff, other agencies and the public. A draft was completed in 1998 that received agency and public support. In 1998, the federal Minister of Fisheries and Oceans announced Race Rocks as one of four pilot areas being considered for designation as marine protected areas (MPAs) under the Oceans Act. At that time, the Ministry of Water, Land and Air Protection withheld the formal approval of this management plan, pending the results of the MPA pilot initiative. As part of the federal initiative, further public consultations and a series of meetings with an advisory group were held. First Nations were also consulted. Out of this process, a number of recommendations were made on boundaries, fishing closures, vessel management, use of surplus lightstation lands and facilities, and ongoing federal-provincial coordination for the protection and management of marine values. As well, a complementary designation under the federal Oceans Act, with boundaries contiguous with the existing provincial designation, was recommended. In 2000, the federal Minister of Fisheries and Oceans announced a commitment to this designation and the support for fishing regulations to make the Reserve a no-take area (subject to First Nation Treaty). As a result, ESD has updated the 1998 version of the plan, incorporating the recommendations from the pilot initiative. This plan will form the basis of the ministry s contribution to a governance agreement with Fisheries and Oceans Canada (DFO) and an umbrella management plan for the ecological reserve and marine protected area. This agreement and plan will ensure a coordinated approach to the management of the area under the complementary marine protected area designations of the provincial Ecological Reserve Act and the federal Oceans Act. 3

11 Background Information Race Rocks Ecological Reserve was created to protect a unique small archipelago, including its inter-tidal areas, and a high current sub-tidal area at the eastern entrance of the Strait of Juan de Fuca. It is located off the southern tip of Vancouver Island, approximately 17 kilometres southwest of Victoria. It covers an area of 227 hectares (Figure 1), of which about 2 hectares is terrestrial. The remaining 225 hectares cover provincial seabed. The Reserve was originally established in 1980 as a result of a proposal by the Lester B. Pearson College to protect a provincially significant high current sub-tidal and inter-tidal ecosystem and provide outstanding educational/research opportunities. In 2001, the majority of the island known as Great Race Rock was added to the Reserve. This addition includes the land and surplus support buildings from the lightstation, but does not include the actual navigation light or land necessary to operate that structure. The marine environment of the Pacific coast is not currently well represented in either the federal or provincial protected areas systems. The federal and provincial governments are committed to establishing a system of marine protected areas and have developed a draft Marine Protected Areas Strategy to serve this purpose. Race Rocks Ecological Reserve is a marine protected area as defined in this federal/provincial strategy. The Race Rocks Ecological Reserve Background Report (Appendix 2) provides a summary of information on the Reserve. This information is the basis for setting the objectives and strategies of this plan. Relationship with Other Land Use Planning Management planning processes provide a mechanism for public input, resolution of competing points of view and interests, and for identifying a protected area s objectives and management strategies. In this respect, an ecological reserve management plan must be considered in relation to adjacent land use and other land use plans. In June 1994, the Province announced the Vancouver Island Land Use Plan which recommended strategic planning occur for marine areas. As an existing protected area, recognized for its significant marine and cultural heritage values, Race Rocks will be an integral part of an expanding system of federal and provincial marine protected areas. With its location near the population of Greater Victoria, and the readily recognizable images of the lightstation and the area s marine wildlife, Race Rocks is an important symbol for the marine protected area system, and for broader coastal zone management initiatives. 4

12 Figure 1: Race Rocks Ecological Reserve Context 5

13 Figure 2: Race Rocks Ecological Reserve Boundary (20 Fathom / 36.6 metre depth) 6

14 Key Management Issues Ecological Reserve Boundary The ecological reserve includes an area of seabed and a group of small islands and reefs bounded by the 20 fathom, or 36.6 metre, contour. The appropriateness of this boundary was reviewed. The boundary should be easily identifiable for boaters and encompass intact natural units of subtidal land. Cooperation with the Federal Government Jurisdictional responsibilities for the management of the marine environment and marine values are shared between the federal and provincial governments. For example, Fisheries and Oceans Canada (DFO) is responsible for the regulations of fisheries and the lead responsibility for navigation and marine mammal protection. The Coast Guard, an agency within DFO, is responsible for the automated lightstation on Great Race Rock. The Department of National Defence uses explosives in the area, which may also have impacts on the Reserve. The province, on the other hand, is responsible for the terrestrial areas, the seabed, and the natural values on those lands. The Province is working with federal agencies, including DFO, Parks Canada and Environment Canada, to develop and implement a marine protected areas strategy, and with Parks Canada to implement the Pacific Marine Heritage Legacy (PMHL) program. The highest level of protection for the Race Rocks area can only be achieved through the cooperative application of both federal and provincial authorities. Cooperation with Lester B. Pearson College The College plays a special role in the Reserve and, in fact, was instrumental in the establishment of the Reserve. The College acts as the Reserve warden and provides an important monitoring function. The College is the principal research agency and has the most comprehensive environmental information on the Reserve. The College also provides public education opportunities as part of the Great Race Marine Research and Education Center. The College is under a long-term permit authorizing these activities within Reserve. The ongoing roles and activities of the College need to be regularly reviewed and updated to ensure the objectives for the Reserve are effectively being achieved. Management of Education Activities Given its rich natural attributes in proximity to an urban center, the Reserve provides excellent educational opportunities. The College uses Race Rocks for their marine ecology program and the provision of interpretation programming for College and local school students and naturalists. Commercial operators (e.g. whale watching tours) regularly use the marine area portion of the Reserve for educational nature tours. Impacts from these educational activities can be significant, and need regular monitoring. Management of impacts is dependent on a cooperative effort using the federal authorities for navigation and marine mammal protection, 7

15 and the influence of commercial associations and interest groups. Efforts will be taken, in cooperation with the College, to ensure all operators and visitors receive appropriate information on the purpose and use of Race Rocks and ecological reserves. Management of Recreation and Commercial Activities Ecological reserves are not designated for recreational purposes. Recreational use may occur when the impacts from that use do not adversely affect the values for which the Reserve was designated. Commercial and non-commercial recreation activities, such as wildlife viewing, diving, boating and nature appreciation, occur within the boundaries of the Reserve. There is growing evidence that the amount of boating use is affecting marine mammal behavior throughout the Strait of Juan de Fuca and southern Gulf Islands. Recreational activities such as boating and diving within the boundaries of the Reserve are not currently restricted. Due to jurisdictional issues, the Province s ability to fully control impacts from marine and air navigation is limited. The control of these activities requires the cooperative and regulatory efforts of provincial agencies, federal agencies, First Nations, tour operators, recreational associations, and recreationists. First Nations Issues Achieving the Reserve s protection objectives requires a good working relationship between the Environmental Stewardship Division and the First Nations people. Marine Pollution Marine pollution, particularly from an oil spill, could pose a significant threat to the Reserve. The Reserve is vulnerable because of the tidal currents in the area, and the proximity to high volumes of commercial and recreational marine traffic. 8

16 The Role of the Ecological Reserve Significance in the Protected Areas System Race Rocks is one of 148 ecological reserves in British Columbia (Appendix 1 provides an overview of the ecological reserve program). It is one of 17 ecological reserves that include marine foreshore. Within the immediate region, Race Rocks is part of an ecological reserve system that includes Ten Mile Point, Oak Bay Islands, and Trial Island. In the Juan de Fuca area, complementary provincial parks include Juan de Fuca, French Beach, and Discovery Island parks. There is a National Wildlife Area at Esquimalt Lagoon, a Regional Park at East Sooke, a National Historic Site at Fort Rodd Hill at Colwood, and the proposed southern Gulf Islands national park reserve. Another area in the local marine area system is Victoria Harbour s breakwater. Although it is not a formal protected area, in order to protect its unique underwater habitats, it is closed to divers harvesting all marine life. The breakwater area hosts a range and abundance of marine species that serves as an important, easily accessible introductory dive opportunity. As well, the breakwater does not have the strong rip tides that make Race Rocks inappropriate for the inexperienced diver. Race Rocks is distinguished from these areas by the combination of: its location at the transition between the Strait of Juan de Fuca and the southern Gulf Islands; its exposure to extreme tidal and weather phenomena; its richness in species diversity and abundance, its infrastructure and level of use for research and educational opportunities; and, its difficult access. Ecological Reserve Roles Race Rocks Ecological Reserve serves four roles. The protection of the natural and cultural heritage values is the priority. Conservation Role Race Rocks Ecological Reserve protects a provincially, if not globally, significant high-current sub-tidal and inter-tidal ecosystem. The Reserve has ecologically significant and unique assemblages of benthic and pelagic invertebrates. It protects several rare species, including the spiral white snail (Opalia), and many rare hydroid species (such as Rhysia fletcheri), that represent unique occurrences. The Reserve also provides haul outs and feeding areas for elephant seals, sea lions, and breeding areas for harbour seals. The Reserve provides nesting habitat and is a migration stop and resting area for seabirds. 9

17 In addition to protecting the cultural heritage values, the primary purpose of Race Rocks Ecological Reserve is for the protection of its natural values and cultural heritage values. All uses of the Reserve will be restricted, to the extent possible, in order to maintain the natural functioning of the Reserve s ecosystems. Education Role Race Rocks Ecological Reserve has a level of human use and development that makes it unusual within the provincial ecological reserve system. The type and level of use create opportunities to build awareness and support for the ecological reserves system, for the ongoing management of the Reserve, for the designation and management of other ecological reserves and types of protected areas and for coastal zone management practices. A purpose of Race Rocks Ecological Reserve is to provide educational opportunities. The impacts from educational uses will be monitored and restricted as necessary to achieve the protection objective of the Reserve. Research Role Race Rocks Ecological Reserve is established for the purpose of conducting non-invasive research into marine ecosystems to benefit the management of the Reserve itself, other marine protected areas, and as a benchmark for the understanding the marine environment in general. Recreation - Public Access Role Race Rocks Ecological Reserve has not been designated for the purpose of providing public recreational opportunities. Use within the Reserve is intended only for education or research purposes. Vision Statement Race Rocks Ecological Reserve will continue to protect the high energy marine system found on and adjacent to the Race Rocks group of islands in the eastern portion of the Strait of Juan de Fuca. Research conducted in the Reserve contributes directly to the protection of the values within the Reserve and indirectly to the management of marine areas on the entire Pacific coast. The Reserve provides special opportunities to increase awareness, understanding and support for British Columbia s ecological reserve program. The College and the surrounding communities play a key role in the provision of educational opportunities, research and on-site management of the Reserve. Although visits to the islands are not encouraged, non-consumptive low-intensity educational uses of the Reserve, such as nature appreciation, wildlife viewing, bird watching and photography, will continue as long as their impacts are within acceptable limits. 10

18 Management Objectives and Strategies Relationship with First Nations First Nation interests and traditional uses of Race Rocks are not well documented. The eastern portion of the Strait of Juan de Fuca is the traditional territory for four Coast Salish Nations, including the Beecher Bay, T souke, Songhees and Esquimalt First Nations (Te mexw Treaty Association). Other Coast Salish Nations may also have used the general area on a seasonal basis. The area provided a wide range of food for these First Nations. The richness of the area is reported to have also allowed these foods to be traded for other commodities. The Province wants to ensure that it does not unlawfully infringe any aboriginal rights or title that may exist. The Environmental Stewardship Division will work cooperatively with aboriginal communities to identify and allow for continued use of compatible traditional activities. OBJECTIVES: To develop working relationships and on-going communications with First Nations that contribute to the objectives for the Reserve. To increase the knowledge of First Nations interests and values of the lands and waters of the Reserve. To define appropriate First Nations interests and uses in the Reserve. STRATEGIES: Continue meetings with representatives of the First Nations to develop an understanding of the common interests between the purpose of the Reserve and the First Nations, and to create opportunities for their involvement in aspects of the Reserve s management. Develop a working agreement, as necessary, to ensure the management of the Reserve is coordinated, efficient and effective. Consult with First Nations to determine the type and nature of their uses of the Reserve. Review traditional use information and complement this information as necessary. Ecological Reserve Boundary Establishing boundaries in marine environments that are identifiable by users is a challenge. Unlike terrestrial areas where signs and other visual indicators often identify protected area boundaries, signs are not generally practical in marine areas. As well, not all users have depth or geo-positioning instruments for determining precise locations. The successful enforcement of protection measures is partially dependent on the ability of users to know whether they are inside or outside the Reserve. The present 20 fathom (36.6 metre) boundary was determined by the normal limit of SCUBA diving and based on the contours of the nautical charts of the time. While this boundary is readily identifiable by any boat with an accurate depth-measuring 11

19 instrument, it does not encompass the full extent of the Race Rocks seamount. In addition, metric charts are now used, making the 20 fathom description more difficult to determine. As part of the DFO-led pilot initiative, boundaries of the Reserve were reviewed. There was some interest in extending the boundary to include all of the seamount that forms the Race Rocks group, and examples of the adjacent flatter bottom habitats. There was no consensus, however, on increasing the boundary of the Reserve. Consensus was reached on maintaining the Reserve boundary as originally designated in the foreshore area. An area of hectares on Great Race Rock is the site of the Race Rocks lightstation, under provincial Land Act lease to Canada Coast Guard. The land on which the lightstation is located, and sufficient land needed for the operation of the lightstation (e.g. helicopter landing site), are not included in the Reserve. Great Race Rock also has a number of residential and support buildings used by the lightstation prior to its automation. The land (1.48 hectares) and structures that became redundant with the lightstation s automation were returned to the province, and were added to the Reserve in OBJECTIVE: To define the boundaries of the Reserve in a way that protects a natural ecological unit, is identifiable by users, and has the support of the public, First Nations, and interest groups. STRATEGIES: Maintain the boundary at the 20 fathom contour. Monitor the effectiveness of the boundary and adjust it as necessary to achieve the Reserve s objectives. Identify the Reserve boundaries on marine charts and related marine guides and publications. Legal Status The Reserve is established by the Protected Areas of British Columbia Act and managed under the authority of the Ecological Reserve Act and the Ecological Reserve Regulations. In addition, the provisions of the Park and Recreation Area Regulation apply to ecological reserves and are used to assist in protecting the area s values. These provisions apply to the terrestrial and seabed lands within the Reserve. Due to the limits of provincial jurisdiction in the marine environment, the authority of the Ecological Reserve Act is limited in the tidal water area of the Reserve. Fisheries and Oceans Canada (DFO) manages marine resources under the authority of the federal Fisheries Act. As well, the Oceans Act can be used to designate a form of marine protected area (MPA). Under the Oceans Act, MPAs can be established for a number of purposes, including conservation and protection of: commercial and non-commercial fisheries resources; marine mammals and their habitats; endangered or threatened species and their habitats; unique habitats; and areas of high biodiversity or biological productivity. 12

20 OBJECTIVES: To maintain British Columbia s interests for the terrestrial and seabed lands designated under the Protected Areas of British Columbia Act and managed under the authority of the Ecological Reserve Act. To engage federal authorities in ways that complement provincial authorities and that contribute to the highest level of protection of the Reserve s natural values. STRATEGIES: Support DFO s complementary designation of the water column within the ecological reserve as a Marine Protected Area under the federal Oceans Act. Develop a protocol or working agreement with DFO to ensure the coordinated, cooperative and effective management of the area, particularly in relation to the tidal water portions of the Reserve where interests are shared between federal and provincial agencies. Confirm ESD as the lead responsibility for all matters on the terrestrial portion of the Reserve. Fish Management The location of Race Rocks in the Strait of Juan de Fuca, the island s physiography, and the high velocity currents combine to make this area a particularly rich marine environment. It is widely valued as a place of high species diversity and abundance, and is ideal for increasing human understanding of marine ecosystems. Marine biologists have indicated that the value of the Reserve s marine ecosystem would be enhanced if the species using the area were as unaffected by human activity as possible. A no-take status for this relatively small area would be useful for a number of reasons, including being a benchmark on which to compare other areas, and as a nursery for adjacent areas. In 1991, DFO closed Race Rocks Ecological Reserve to commercial fishing and shellfish harvesting. Race Rocks was also closed to the recreational harvest of shellfish, ling cod and rock fish. The Reserve remains open for recreational fishing of salmon, halibut and other species. As a result of fishing for salmon and halibut within the Reserve, resident fish are being inadvertently caught. The extent of this by-catch effect is not fully known. OBJECTIVE: To provide the highest level of protection for the resident marine species within the Reserve. STRATEGIES: Continue to work with DFO to implement a complete closure for all fishing in the Reserve. Subject to conservation needs, the no-take status of the Reserve will not apply to First Nations treaty and traditional use rights. Develop an enforcement strategy with the DFO, the provincial Conservation Officer Service, and other appropriate federal agencies. 13

21 Monitor compliance with the fishing closure. In cooperation with DFO, undertake enforcement of fishing regulations. Undertake inventory and evaluation studies in cooperation with DFO and the College to document the effects of the fishing closure on the fish, avian and mammalian species within the Reserve and the adjacent populations. Wildlife Management About 45 known species of marine birds use the Race Rocks area for feeding, roosting and nesting. The Reserve provides critical nesting habitat for glaucous-winged gulls, pigeon guillemots, black oystercatchers and possibly Brandt s cormorants. Twenty-three percent of the pelagic cormorant population in the eastern Strait of Juan de Fuca nests at Race Rocks. Marine mammal species found at Race Rocks are representative of the Strait of Juan de Fuca and include five species of pinnipeds and ten species of cetaceans (five of which are common). The area is primarily used as a stopover and rafting site for California and northern seal lions in the winter. Harbour seals are the primary year-round resident users for haul-out, birthing, and rearing. The Reserve is the largest haul-out for harbour seals in the Strait of Juan de Fuca, the second largest in the Canadian waters of the Georgia Basin, and can represent up to 20% of the southern Gulf Islands population. There is a high abundance and diversity of benthic invertebrates within the Reserve. Urchins, soft coral, brittle stars and anemones are particularly abundant. Pacific abalone occurs throughout the Reserve and is listed as a threatened species by the Committee on the Status of Endangered Wildlife in Canada (COSEWIC). OBJECTIVE: To maintain current species diversity, abundance and distribution. STRATEGIES: In the event of inter-species competition that impacts the long-term wellbeing of a particular species, develop criteria, priorities and actions for the management of the affected wildlife populations. Work with Environment Canada, Canadian Wildlife Service, to ensure uses within the Reserve are not adversely affecting the bird populations viability. Prohibit or restrict uses to ensure the long-term viability of marine wildlife species. Continue to monitor marine mammals within the Reserve, and in cooperation with DFO, develop a plan of action to ensure impacts from human use are maintained within acceptable limits. 14

22 Cultural Heritage The Reserve s cultural heritage is also significant. Race Rocks is a prominent part of the famous graveyard of the Pacific. The rocks were named by the officers of the Hudson s Bay Company who recognized the area s severe navigational hazards. These hazards are created by a combination of the strong rip tides, frequent poor visibility from fog, and extreme exposure to all prevailing winds. Numerous shipwrecks led to the establishment of a lightstation in The lightstation is the second oldest on British Columbia s coast and is now protected as a designated heritage structure. The Underwater Archaeological Society of British Columbia maintains an inventory of shipwrecks within the Reserve. The College has established an internet archive of relevant historical information and images. Efforts are now being made to document First Nations historical interests and use of the Reserve. OBJECTIVE: To ensure that the cultural heritage values in the Reserve are protected. STRATEGIES: Work with the Coast Guard and appropriate federal agencies to preserve historic attributes of the lightstation. Review traditional First Nation use information and complement this information as necessary. Marine Pollution Risk Management Petroleum tankers, freighters, cruise ships, and other marine traffic regularly pass within a few kilometers of the Reserve. On average, two supertankers pass through the Strait of Juan de Fuca each day. The risk of an oil spill or contamination from ballast discharge or other forms of pollution is high. An oil spill or discharge of other pollutants near the Reserve could potentially devastate the sensitive inter-tidal communities, and the marine mammal and bird populations. While the Reserve may have a relatively short cleansing time given its location in a high current zone and its exposure to both easterly and westerly winds, these factors also increase the probability that any spill in the Strait of Juan de Fuca will have an affect on the Reserve. OBJECTIVE: To work with the appropriate federal and provincial agencies to minimize the potential of, and impacts from, oil spills and other contaminants. STRATEGIES: Participate in the preparation of an oil spill prevention plan and develop an oil spill response plan in conjunction with the lead federal and provincial agencies. In conjunction with the Oil Spill Recovery Information System (OSRIS), develop and register a strategy for protection of the Reserve in the event of an oil spill. 15

23 Maintain prohibition of ocean dumping within the Reserve, and work to ensure any dumping outside the reserve does not impact the values within the reserve. Prohibit ballast and other vessel discharges within or adjacent to the Reserve. Facility Management With the automation of the lightstation, the support buildings that were no longer required for the operation of the lightstation were transferred to the Province. These buildings are now within the Reserve. The former lighthouse buildings pose two threats to the marine environment. First, sewage from the residences is being discharged directly into the water column. Although the extreme tidal flushing lessens the impact, this situation is not appropriate in a highly valued marine environment. Secondly, diesel generators provide the electrical power. Diesel fuel poses an environmental hazard. Alternative, lower risk technologies for sewage treatment and power generation, such as composting toilets and solar energy, may be more appropriate for use in the Reserve. A composting toilet has already been installed in the former assistant s residence. Another facility issue is the ongoing maintenance of the former lightstation buildings. The cost of regular maintenance is relatively high. In relation to other management activities throughout the provincial protected areas system, these costs may place significant pressures on organizational resources. It is unlikely that sufficient funding will be available from within ESD s budget to maintain the buildings. The maintenance of the buildings will likely depend on outside funding sources, including partnerships and corporate sponsorships. OBJECTIVES: To ensure the environmental (existing and potential) impacts from the facilities on Great Race Rock are managed within acceptable limits. To showcase alternative, low impact technologies. To maintain the buildings within the Reserve to the extent that funding allows. STRATEGIES: Ensure sewage does not adversely affect natural values by installing and maintaining selfcomposting toilets. Take actions to minimize the risk of fuel spills or other contaminant discharges within the Reserve. Investigate opportunities to utilize alternative technologies. Monitor technology improvements that make more intensive use possible with less impact on the natural values. Work with the College to address building funding issues as they arise. Where appropriate, ESD will assist the College in securing resources from provincial and federal funding sources and programs for the implementation of specific projects or activities authorized within the Great Race Marine Research and Education Center Permit. As authorized by permit, the College may pursue private and non-government sources of support. 16

24 Access Management and Site Visitation In addition to the protection of natural values, ecological reserves are established to support research and educational activities. Visitation to the waters surrounding Race Rocks Ecological Reserve has been increasing, particularly by those engaged in wildlife viewing and diving. During peak summer viewing times, it is not unusual for the Reserve to have 25 tours each day. All use within the Reserve arrives by water or by air, and has some form of impact on the natural values. These impacts include: Disturbances to the underwater marine communities by anchoring; Disturbances to nesting sea birds or resting sea lions and seals by landing or passing too close to these small islets and reefs; Injury to marine mammals and birds from high speed boats; Poaching; Physical injury or mortality from handling or improper dive techniques; and, Low flying aircraft occasionally disturb the Reserve s wildlife. At critical periods (e.g. nesting and pupping times), the impacts from these disturbances can be significant. Most use within the Reserve is by commercial operations. The market demand for both whale watching nature tours and SCUBA diving, suggests that the use by commercial operations is likely to increase. There are many challenges to controlling the type and level of use within the Reserve. For example: The regulation of navigation is principally within the federal jurisdiction. The weather and tidal currents within the Reserve make it unsuitable for inexperienced divers. The richness of the underwater marine life is a significant attraction though, and the public safety issues put pressures on search and rescue capacities. Uses that occur within the Reserve should contribute to education or research objectives without negatively impacting the natural values. Distinguishing between general recreational use and educational activities is not always clear. If use within the Reserve continues to increase and higher levels of impact are recorded, restrictions may be necessary. Determining the most effective and efficient constraints must involve a wide range of rights and interests, and include a number of government agencies, commercial and non-government organizations, and the general public. As part of the DFO pilot MPA initiative, two sets of voluntary guidelines were prepared. The dive community prepared guidelines for appropriate diving practices. These are included as Appendix 3. In principle, diving can be an extremely low impact activity. Certain practices, however, such as mooring boats and the physical disturbance and habituation of species, can have impacts. Successful implementation of the guidelines will be dependent on an effective communication strategy that reaches as many divers as possible. A second issue with diving is 17

25 the risks associated with the weather and tidal conditions common in the Reserve area. A high level of experience and local knowledge are required for safe diving opportunities. The Whale Watch Operators Association also developed a Best Practices for Tour Operators Guideline (Appendix 4). These guidelines complement the recent activities of DFO to establish voluntary boating guidelines. The Association s guidelines specify minimum viewing distances and maximum speed limits. As a non-government initiative, compliance with the guidelines is voluntary. The Association has indicated it is prepared to use the influence of its membership to ensure compliance. The guidelines are also intended to apply to general recreational boaters. Compliance, however, will only be as effective as communications are able to inform the general recreational boating public. In the Strait of Juan de Fuca, there is growing concern that the number and regularity of whale watching tours, coupled with the industry s constant and accurate awareness of whale locations, could be affecting whale behavior. This level of use particularly affects their resting and feeding habits. There is a growing desire among whale protection interests to see no-go sanctuary areas established where whales and other marine mammals can retreat to escape whatever stresses this level of human activity is creating. The current boundaries of the Reserve are probably insufficient to provide the necessary level of protection for such a no-go sanctuary. However, as part of a system of marine protected areas, the Reserve may play an integral role. Boat Access OBJECTIVE: To respect boaters rights of navigation and the potential needs for marine safety, while restricting access to and within the Reserve in ways which minimize the impacts to the area s natural values. STRATEGIES: In cooperation with federal agencies, commercial associations and public interest groups, develop a marine navigation action plan to ensure protection of inter-tidal and rare species, and to ensure that elephant seals, harbour seals, California and northern sea lions, and seabirds are not disturbed on their haul-out and nesting sites. Such a plan will consider the use of speed limits, minimum distances from specific features, seasonal or permanent nogo zones, mooring practices, and other mechanisms to achieve the Reserve s objectives. Protect seabed habitats by prohibiting anchoring in the Reserve. Develop a communication strategy to ensure the boundary of the Reserve is identifiable, and the speed limits and its protective status are clearly described in the BC Sports Fishing Regulations and on marine charts and guides. 18

26 Aircraft Access OBJECTIVE: To maintain the impacts on the Reserve from aircraft use within acceptable limits. STRATEGIES: Continue to monitor aircraft activity and determine the extent of the impacts. Consider opportunities to control the airspace over the Reserve if and when necessary and appropriate. Prohibit aircraft landings within the Reserve, except as authorized by permit. Continue the working relationship with the Canadian Coast Guard to minimize the impacts from their use of the lightstation lands. Diving Access OBJECTIVE: To manage underwater diving to minimize or eliminate impacts. STRATEGIES: Implement the guidelines for diving in the Reserve. Develop a communication plan to ensure public / diver awareness for the diving guidelines. Monitor compliance with diving guidelines. Monitor impacts from diving. In consultation with the diving community, review and amend the guidelines, if and as necessary, to ensure the impacts from diving remain at an acceptable level. In cooperation with the College and marine rescue organizations, develop a rescue plan that identifies responsibilities and procedures. Terrestrial Area Access OBJECTIVE: To minimize the impacts from human use on the terrestrial areas of the Reserve within the constraints of the operation of Great Race Marine Research and Education Centre. STRATEGIES: Discourage public access to the terrestrial portions of the Reserve. However, visits to the islands will be allowed when their impacts are within acceptable limits. 19

27 Monitor compliance with the terrestrial use objective and, if necessary, consider the addition of the Reserve s terrestrial areas to the list of ecological reserves that are closed by ministerial order to public access. Commercial Use Access OBJECTIVES: To allow commercial access to the Reserve, when authorized by permit, for educational opportunities that have minimal impact and that increase public awareness, understanding and appreciation for the Reserve and its values. To prohibit commercial activities that are not for educational purposes. STRATEGIES: Ensure that commercial operators in the Reserve have permits for their activities as required by the Ecological Reserve Regulations. For administrative efficiency and implementation effectiveness, consider opportunities to meet the requirements of the Ecological Reserve Regulations permitting requirements by issuing an umbrella permit to the Whale Watch Operators Association (WWOA) for commercial activities within the Reserve. Coordinate such authorization with DFO. Issue permits for commercial activities in the Reserve only if they are for educational or research purposes and when the impact of the proposed use is within an acceptable limit. Implement the Whale Watch Operators Association guidelines. Monitor effectiveness of WWOA guidelines. Review and amend as necessary. Monitor the level of use within the Reserve and adjacent area, evaluate the impacts from this use, and, in cooperation with federal agencies, commercial associations, non-government organizations, and the public, implement measures to protect marine life and the naturally functioning ecosystem within the Reserve. Work with the Reserve warden, the College, to provide orientations for permittees. Work with commercial operators and researchers to develop and maintain a code of conduct within the Reserve to ensure protection of the natural values and to maintain a high quality educational experience. General Access Strategies The following strategies apply to all forms of access and site visitation: 20

28 STRATEGIES: Develop a monitoring system with the College, site guardian, researchers and commercial tour operators to ensure appropriate behavior of diving and wildlife viewing companies and other visitors. Prohibit anchoring in the Reserve. Develop and implement outreach and stewardship programs to assist with site management. In cooperation with other marine agencies and interests, support the study and identification of a system of marine areas designated and managed for the needs of marine mammals. Adjacent Land Uses Commercial and sports fishing, nature tours, marine traffic, and the Department of National Defence s use of explosives occur in the waters adjacent to the Reserve. Presently, the federal government administers the lightstation on Great Race Rock. As one of the heaviest marine traffic areas on the Pacific coast, the lightstation is likely to continue indefinitely. A number of federal and provincial initiatives for planning in the marine environment are either proposed or underway. These include the Pacific Marine Heritage Legacy, Marine Protected Areas Strategy and strategic planning for marine areas that is consistent with the Vancouver Island Land Use Plan. OBJECTIVE: To participate in land use planning initiatives and work with other agencies to ensure these agencies activities do not adversely impact the Reserve. STRATEGIES: Work with the Department of National Defence to minimize or eliminate the impacts on the Reserve from the use of explosives. Work with DFO, other federal and provincial agencies, commercial associations and nongovernment organizations to ensure the Reserve contributes to a network of areas and standard practices that improve the interests of fish, marine mammals and birds of the region. Develop an agreement / protocol with the Coast Guard for their continuing operation of the lightstation, including helicopter landings, marine access, and maintenance. Participate in federal and provincial marine planning initiatives that may affect the Reserve. Research Management One of the main objectives of the ecological reserve program is to provide opportunities for scientific research. The Reserve has been very successful at fulfilling this objective through the interests and actions of the College. The College undertakes and assists in most of the research 21

29 conducted at Race Rocks. The students and faculty provide local knowledge, orientation services and often assist other authorized researchers. Additionally, the College monitors permanent inventory transects and conducts their own research as part of their permit and course requirements. ESD encourages research that contributes to the long-term protection and understanding of ecosystems. Research priorities reflect the Division s mandate, with emphasis on conservation objectives, acute and chronic management problems, and rare and endangered species. To achieve this, research proposals are subjected to a systematic review process. The collected data are available to, and shared with, the scientific community. In the past, the College worked closely with the Coast Guard and the lightstation keepers. The College was able to use some of the buildings to facilitate their research. With the automation of the lightstation, and the transfer of the surplus support buildings to the Ministry of Water, Land and Air Protection, the College has been given a long-term permit for the use of the buildings. The College uses these buildings as the Great Race Marine Research and Education Center in accordance with the conditions specified in the permit. OBJECTIVES: To encourage and learn from non-destructive research on marine ecosystems that will benefit: Race Rocks Ecological Reserve; management of other marine protected areas; and provide an understanding of the condition of marine ecosystems in general. To encourage the compilation of information on the Reserve s cultural heritage. STRATEGIES: With the assistance of the College and other researchers, develop a long-term research and monitoring plan to minimize impact to ecological reserve values and maximize research opportunities and benefits. Ensure all researchers are authorized by permit. Ensure research activities are coordinated in a way that minimizes impacts and maximizes understanding of marine ecosystems and their management. Authorize the College s use of the buildings on Great Race Rock as the Great Race Marine Research and Education Center. Maintain a comprehensive permit with the College defining their roles and responsibilities for education, research and on-site management. Work with community groups and other partners for the ongoing operation and funding of the Great Race Marine Research and Education Center. Data collected in the Reserve will be made available to, and shared with, the scientific community. 22